11-23-20 CC WS Agenda Packet
CITY OF SHOREWOOD 5755 COUNTRY CLUB ROAD
CITY COUNCIL WORK SESSION COUNCIL CHAMBERS
MONDAY, NOVEMBER 23, 2020 6:00 P.M.
Due to the Centers for Disease Control's recommendation limiting the number of people
present at a meeting, and pursuant to MN Statute §13D.02, the Shorewood City Council
meetings will be held by electronic means. For those wishing to listen live to the meeting,
please go to ci.shorewood.mn.us/current_meeting for the meeting link. Contact the city at
952.960.7900 during regular business hours with questions. For link issues at meeting time,
call 952.960.7906.
AGENDA
1. CONVENE CITY COUNCIL WORK SESSION
A. Roll Call
Mayor Zerby _____
Johnson _____
Labadie _____
Siakel _____
Sundberg _____
B. Review and Adopt Agenda
2. Comprehensive Plan Discussion Planning Director Memo
3. ADJOURN
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MEETING TYPE
City of Shorewood Council Meeting Item
Worksession
Title / Subject: 2040 Comprehensive Plan Discussion
Meeting Date: November 23, 2020
Prepared by: Marie Darling, Planning Director
Attachments: NAC Response Letter to Metropolitan Council
Strikeout/Underscore Version of Land Use Chapter
Final Draft Version of Land Use Chapter
A copy of the 2040 Comprehensive Plan sent to the Metropolitan Council last summer is available on the
City’s website
Background:
The City’s consultants have finalized the revisions necessary to resubmit the Plan to the Metropolitan
Council. For most of the revisions, the changes are minor; and staff did not include a full copy of the
plan for your review this evening. The most significant changes to the Comprehensive Plan were made
to the land use chapter, with those changes repeated in the housing chapter. Due to the length of the
Chapters and the amount of repetition, staff did not include the housing chapter language in your
packet this evening.
The significant changes to the land use chapter include amending the land use map and the text in the
following areas per the previous Council direction:
19905 State Highway 7: A paragraph was added within the text of the land use chapter indicating
that this site is a mixed-use site. (P. 115 of the strikeout/underscore version of the land use chapter)
23400, 23425 and 23445 Smithtown Road were changed from Commercial to High Density
Residential
Changes to the tables throughout the chapter to be consistent with the land use map.
The Metropolitan Council’s direction was to add enough locations to produce 155 dwelling units and 48
units of affordable housing. Both need to be at a density of 5 units per acre or greater.
Using the Metropolitan Council’s calculations, these sites, plus other properties classified for a density
over five units to the acre would produce 95 of the required dwellings including 30 of the required 48
affordable housing units. In a meeting held between the Mayor, City Staff and the Metropolitan Council
staff and appoint representative, the Met Council staff also told the City that the city could be complete
but not compliant in this regard. However, staff could also include the Shopping Center at Hwys 41 and
7 as a mixed-use site, which would bring the numbers even closer to meeting the requirements.
Mission Statement: The City of Shorewood is committed to providing residents quality public services, a
healthy environment, a variety of attractive amenities, a sustainable tax base, and sound financial
management through effective, efficient, and visionary leadership.
S:\Planning\Comprehensive Plan\Comp Plan 2019\Council Action\20 11 23 Worksession Cover.docx
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Staff would like direction on the following:
1.Are the changes that were directed by Council adequate as shown on the map? Or should staff
include the shopping center property at Hwys 41 and 7 as mixed use to approach the original
direction of the Metropolitan Council?
2.Level of review with the public: The changes to the land use map are not required to be
reviewed again by the public. However, they are substantial changes and staff recommends
allowing some public notice and public comment, even if it is a generic notice regarding the
review of the final document changes. Notice also could include the City of Excelsior, residents
within 500 feet of the affected properties, etc.
NORTHWEST ASSOCIATED CONSULTANTS, INC.
__________________________________________________________________
4150 Olson Memorial Highway, Ste. 320, Golden Valley, MN 55422
Telephone: 763.957.1100 Website: www.nacplanning.com
MEMORANDUM
TO: Shorewood Mayor and City Council
FROM: Nate Sparks, Consulting Planner
DATE: November 13, 2020
RE: Shorewood - 2040 Comprehensive Plan
BACKGROUND
Based on Metropolitan Council comments, a revised version of the Land Use Plan
chapter of the draft plan was created for review. A few parcels were modified in the
land use plan, based on previous discussions. For the most part, the plan is similar but
with some technical items included. Specifically, the Metropolitan Council wanted the
City to identify parcels that have development potential and provide more detail on the
proposed density of development.
PLAN CHANGES
The Land Use Plan was slightly adjusted to include specific parcels that are identified
for potential future development and the minimum number of housing units that can be
provided (Page 117).
Some of the parcels are commercial in nature being reclassified as residential. Others
are residential but have the land area and capacity for new development. These
properties provide for new units that can be used to come close to meeting the required
forecasts.
The Metropolitan Council requested that the City provide 155 units of housing at 5 units
per acre. The plan identifies 95 units that meet the required density.
The Metropolitan Council also requested that the City provide 48 units at a minimum of
8 units per acre to qualify as meeting the affordable housing requirements. The plan
identifies 30 units of affordable housing.
The City, led by the Mayor, met with the Metropolitan Council and stated that this will be
the approach that the City takes for addressing these issues.
RESPONSE TO MET COUNCIL
The following is a summary of stated “required information” (necessary in order to deem
the Plan complete) as well as a City Staff response which describes the changes which
have been made to the updated version of the Comprehensive Plan or provides related
comments.
WASTEWATER
The City must include a copy or copies of intercommunity service agreements
entered into with an adjoining community, or language that confirms the Council’s
understanding that the communities reimburse each other for the municipal
wastewater charges that each will occur by receiving flow from the adjacent
community; including a map of areas covered by the agreement.
Response.
The agreements will be attached as an appendix to the plan. The plan
will reference reimbursement policies between the cities.
TRANSPORTATION
Transit. The Plan must be revised to include a full description of Shorewood’s
Transit Market Areas (TMA), which include both TMA 4 and TMA 5, which includes
the portion of the City west of Eureka Road.
Response.
The Transportation Section is updated to include references to all
Transit Market Areas in the City.
Advisory Comment
The Plan should include reference to Metro Mobility or Transit Link in the transit
section. Both are available in Shorewood, and the document should directly mention
these dial-a-ride services.
Response.
The two dial-a-ride services mentioned above have been referenced in
the Transit section of the Plan.
Bicycling and Walking. The Tier 1 and 2 Regional Bicycle and Transportation
Network (RBTN) corridors / alignments must be mapped in the Plan. The RBTN
could be added to the local park and trail system map or provided in a separate map
identifying the. The RBTN GIS file can be located here:
https://gisdata.mn.gov/dataset/us-mn-state-metc-trans-regional-bike-trans-netwrk.
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Response.
The proper Regional Bicycle and Transportation Network
corridors/alignments are illustrated on the updated Regional Parks and Trails map.
PARKS
The Plan must describe, map and label the Lake Independence Extension Regional
Trail Search Corridor. A description of the Lake Independence Extension Regional
Trail Search Corridor is available on page 34 of Shorewood’s 2015 System
Statement, and available online at:
https://metrocouncil.org/Communities/Planning/Local-Planning-Assistance/System-
Statements/System-Statements/02395877_Shorewood_2015SS.aspx.
A map of the Regional Parks System in the City, including the regional trail search
corridor, appears on page 36 of Shorewood’s System Statement.
City Response.
The Regional Parks System map (prepared by the Metropolitan
Council) which includes the Lake Independence Extension Regional Trail Search
Corridor has been added to the Plan as a new map which illustrates regional Parks
and trails in both the City of Shorewood and surrounding areas.
The Plan must also include a capital improvement program for parks and open
space facilities as part of the implementation section.
City Response.
The City’s capital improvement program, which includes specific
programs for parks and open space has been attached to the Plan as Appendix D.
FORECASTS
The Land Use Chapter must include an analysis specifying what quantities of land
will be developed over the next two decades, and at what densities. While the Plan
includes a map of vacant and undeveloped land supply, estimated at 202 acres,
there is not enough information in the Plan to determine that the land supply
accommodates the growth forecast (155 additional households during 2018-2040).
A housing capacity and staging table needs to be added to the Plan.
City Response.
The staging plan is on Page 118 depicting the number of units
provided. Page 117 depicts the specific parcels with the future units associated.
The Council requires some measure of employment-bearing land use intensity for
commercial and industrial land uses to be added to the Plan. Acceptable
measurements of intensity include Floor Area Ratio (FAR), or building footprint
coverage, or jobs per acre, or setback and height restrictions. Any of these would
meet the requirement of measuring of employment-bearing land use intensity.
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City Response.
The City is not increasing the commercial and industrial properties
within the plan, as the City is currently meeting the employment forecasts.
Advisory Comments
Council staff find that recent employment growth and population growth have
significantly exceeded what was expected in the current decade. The City can
request that the employment numbers be increased with the Plan update. Council
staff recommend adding +200, +300, and +400 population respectively to each of
the 2020, 2030, and 2040 forecasts. The households number can remain as is.
Further, we recommend resetting the employment forecast to 1,600 jobs for each of
the future forecast years; Shorewood reached 1,600 jobs in 2018.
Shorewood
CensusPrevious Council EstimatesCouncil staff
Forecastsrecommendation
20102020203020402018202020302040
Population
7307 7400 7500 7600 7693 7600 7800 8000
Households
2658 2800 2910 3000 2845 2800 2910 3000
Employment
1113 1300 1340 1400 1600 1600 1600 1600
Response.
The City accepts the revised forecasts and uses these assumptions in
the revised version of the Land Use Plan.
LAND USE
Community Designation. The Plan must include a map acknowledging the City’s
regional Community Designation as Suburban. The Plan does acknowledge the
overall density expectations for Suburban Communities at five units per acre, but the
Community Designation Map is not included. The map is available on the City’s
Community Page of the Local Planning Handbook.
Response.
The Community Designation map has been added to the Plan.
Existing Land Use. The Existing Land Use table states 2016 land uses and the
Existing Land Use map states 2017 land uses. This information must be consistent.
Response.
The Existing Land Use table has been modified to be convey 2017
information such that the table and map are consistent.
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Right-of-way is included on the table and not in the map legend. This information
must be represented consistently.
Response.
Right-of-way has been added to the legends on both the Existing
Land Use map and the Land Use Plan.
Future Land Use
Land use categories must include types of allowed uses and include a description of
allowable housing types such as single family, detached, duplexes, townhomes, etc.
Response.
The land use categories in the previously submitted version of the
Plan and the revised Plan both reference types of allowable uses and housing
types. Further clarification of this has been added.
The Plan must address missing information or resolve inconsistencies within the
Plan regarding the density ranges for planned land uses.
Response.
This has been included in the revised Land Use Plan. There are no
longer inconsistencies.
The Plan should provide a table of identified redevelopment or new development
areas that includes future land uses, acreages, density ranges, and total residential
units in 10-year increments.
The narrative describes areas that could be developed for residential or a
o
mix of uses and also need to identify a timeframe.
The narrative describes areas for potential high-density residential
o
development and needs to assign a timeframe and depict these areas on
a map.
Response.
A table with staging has been added to the revised Land Use Plan.
For mixed used districts, the Plan must include estimates of the percentage of land
that would be used as residential.
These percentages should reflect the Plan’s flexibility in defining mixed
o
use districts as either vertical mixed use (e.g., 100% residential with
integrated non-residential uses) or some combination of a horizontal mix
of uses (e.g., 50% of parcels developed as residential).
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For example, the narrative describes two areas that could be developed
o
with a mix of uses on page 114. The section should include the share and
density ranges for those uses.
Response.
No “mixed-use” districts or land use categories are proposed within
the Plan. Mixed Use is only proposed as an ‘alternate’ land use for one parcel.
Advisory Comment
Staff encourages the City to develop a table that simplifies and clarifies the future
land use analysis and policy, and one that would fulfill the Plan requirements.
Information could be added to the Existing and Proposed Land Uses table on page
120. These elements include the following:
Guiding land use
o
Acreage anticipated to develop
o
% of land anticipated to develop as residential
o
Timeframe (e.g., 2021-2030)
o
Response.
A revised land use table is included with a diagram showing parcels
included for meeting the forecasts.
Density Calculations
More information is needed to determine the average net residential density for the
City. The Plan must Identify where forecasted residential growth will happen on the
Future Land Use Map or a separate map showing expected new development and
re-developed areas and focusing on areas of change. Show which planned land
uses have changed from the City’s previously approved plan and where new land
uses (change or development intensity) are planned/expected. This information
must match the future land use table recommended above.
Response.
This has been included in the revised Land Use Plan. The City is
delivering new development at the required levels (5.5 units per acre)
Staged Development and Redevelopment
A staging table noting the number of acres potentially available for development
within each 10-year planning period must be included in order to clarify the City’s
ability to meet the minimum required density for a Suburban Community of five units
per acre.
Response.
A staging plan is included on page 118.
Identify potential local infrastructure impacts for each 10-year increment.
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Response.
The plan has been revised to account for this.
Demonstrate that the City is capable of providing services and facilities that
accommodate its planned growth in the included a capital improvement plan or
similar document.
Response.
The plan accounts for the additional units in the sewer and
transportation plans.
The staging plan or likely development phasing must be consistent with the volume
of anticipated sewer flow identified in the City’s Local Comprehensive Sewer Plan.
Response.
This is revised in the Sewer Plan.
HOUSING
Existing Housing Need
Plans must provide the number of existing housing units that are affordable within
each of the three bands of affordability (less than 30% Area Median Income (AMI),
31-50% AMI, and 51-80% AMI).
Response.
The number of housing units for the three bands of affordability have
been added to the Housing Plan.
Plans must state the number of publicly subsidized or income-restricted housing
units available within the City, even if that number is zero.
Response.
The number of publicly subsidized or income-restricted housing
units available within the City, has been added to the Housing Plan.
Plans must provide the number of existing households that are housing cost
burdened within each of the three bands of affordability.
Response.
The number of existing households that are housing cost burdened
within each of the three bands of affordability have been indicated in the Housing
Plan.
Maintenance and senior housing options have been identified as existing housing
needs. Once the missing data is provided, the Plan should consider if they reveal
any additional existing housing needs. Once existing housing needs are clearly
stated, a description of all widely recognized tools Shorewood would consider using
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to address those needs, and in what circumstances, is required for the Plan to be
complete.
Response.
Within the Housing Plan, the description of housing tools has
expanded in a manner similar to the example provided by the Metropolitan
Council.
Projected Housing Need
Land guided to address Shorewood’s 2021-2030 allocation of affordable housing is
not sufficiently described for review. A staging table noting the number of acres
available or likely to develop within the Medium Density Residential and the High
Density Residential land uses in the 2021 decade is necessary to determine if
sufficient land is guided to address Shorewood’s allocation.
Response.
The Plan acknowledges the affordable housing requirement (48
units) and depicts the number of units being provided (30 units). The plan will be
complete but inconsistent as the required number of units is not being provided.
Implementation Plan
The Plan must describe and provide policy direction on what available housing tools
it is likely or unlikely to use with respect to identified housing needs. As a reminder,
housing needs include those identified through the existing housing assessment
narrative and the affordable units allocated between 2021 and 2030. This includes
tools that are not locally controlled but require local support, application or
administration to be successfully used. Tools mentioned by the Plan that don’t
adequately describe the circumstances of their use include:
Tax Increment Financing
o
Hennepin County’s Affordable Housing Incentive Fund (AHIF)
o
Hennepin County HOME funds
o
Referring to the Local Planning Handbook’s list of recognized housing tools does not
meet the requirement to describe and consider available housing tools to meet
identified housing needs. As a reminder, housing needs include those identified
through the existing housing assessment narrative and the affordable units allocated
between 2021 and 2030. Tools not mentioned in the Plan include:
Tax Abatement
o
Housing bonds
o
Fair Housing Policy
o
Participation in housing-related organizations, partnerships, and initiatives
o
(basically committing to ongoing education about housing tools available
to meet housing needs)
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City support or direct application to specific resources within the
o
Consolidated RFP put out by Minnesota Housing
Preservation of naturally occurring affordable housing, including
o
partnership with Homes Within Reach to create land trust homes in
Shorewood, local 4d tax incentives, Housing Improvement Areas, and
promoting/supporting/applying for resources to preserve naturally
occurring affordable housing such as MN Housing, Greater Minnesota
Housing Fund’s NOAH Impact Fund, and others.
Staff has provided an example of another community’s housing implementation table
that meets the requirements of the Metropolitan Land Planning Act and is consistent
with Council housing policy, in case it is helpful.
Response.
As previously indicated, a description of housing tools is provided in
the Housing Plan. The description is presented in a manner similar to that
provided by the Metropolitan Council.
Advisory Comment
Both pages 74 and 137 include policy direction to encourage owner-occupied
housing. This policy could be considered exclusionary. Council staff encourage the
City to consult with their attorney to consider if this statement leaves the City
vulnerable to a Fair Housing complaint under the Fair Housing Act.
Response.
These comments were remaining from a previous version of the
plan. The City will remove these references.
WATER SUPPLY
The City must attach the final local water supply plan template, as submitted to
DNR, as an attachment to the Plan so that all components of the Plan are accessible
together.
Response.
The plan has been attached.
COMMUNITY WATEWATER AND SUBSURFACE SEWAGE TREATMENT SYSTEMS
The Plan indicates that there are four individual SSTS and no public or privately-
owned Community Wastewater Treatment Systems in operation in the City. Text on
page 52 of the Plan states that SSTS locations “are shown on the map on the
following page” of the document, however a map depicting the locations of operating
SSTS in the City was not found in the Plan. The Plan needs to be revised to contain
the referenced map.
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Response.
It is assumed that the SSTS referenced above is intended to
reference the ISTS reference included the City’s Plan. The ISTS map has been
inserted into the Plan.
The Hennepin County Plan indicates that the City has delegated the responsibility of
permitting, inspection, maintenance management, and compliance enforcement of
remaining SSTS in the City in accordance with Hennepin County Ordinance 19. The
Plan is silent on this issue and needs to have text added to the Plan to either confirm
that the County actively oversees the City’s SSTS program, or detail how the City
oversees its SSTS maintenance management program.
Response.
This has been included.
AGGREGATE RESOURCES
The Plan is silent on the presence of aggregate resources in the City. The Council’s
aggregate resources inventory information contained in Minnesota Geological
Survey Information Circular 46 indicates there are no known viable aggregate
resource deposits available for extraction within the City. The Plan needs to be
revised to include this information.
Response.
Plan has been revised to state that there are no known viable
aggregate resource deposits available for extraction within the City.
IMPLEMENTATION
Define a timeline as to when actions will be taken to implement each required
element of the Plan.
Response.
This has been included.
The Plan must include a Capital Improvement Program (CIP) for transportation,
sewers, parks, water supply, and open space facilities. Specify the timing and
sequence of major local public investments.
Response.
The City’s capital improvement program, which includes specific
programs for parks and open space has been attached to the Plan as Appendix
D.
The CIP must align with development staging identified in other parts of the Plan and
include budgets and expenditure schedules.
Response.
This has been included.
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Include your local zoning map and zoning category descriptions. Identify what
changes are needed to ensure zoning is not in conflict with the new land use plan
and consistent with regional system plans and policies.
Response.
The City’s zoning map and zoning district descriptions have been
inserted into the Plan, followed by the zoning map. Itemized revisions are also
included.
REQUESTED CITY COUNCIL ACTION
The City Council should review the revised Land Use Plan and direct Staff to resubmit
the Plan to the Metropolitan Council.
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